Challenges in designing Bicameral Parliament in Multiethnic Federations: The Pakistani Experience

Abstract

This paper examines the challenges that the Pakistani federation encountered in creating a bicameral legislature. Despite the fact that the state agreed to adopt a federal system, disagreements over the nature and function of federal political institutions arose during the constitution-making process. In this respect, the major bone of contention between the federating units was the composition and role of federal second chamber in Pakistan. Several bicameral design proposals were turned down by the first constituent assembly of Pakistan. Subsequently, in the constitutions of 1956 and 1962, the federation established a unicameral parliament with equal representation for both provinces regardless of population size. Following the separation of East Pakistan in 1971, a bicameral parliament was established in the 1973 constitution. However, due to the parliamentary system of government, the second chamber was given a subordinate role to the popular house. In this context, the paper provides historical analysis to show how the federation faced challenges in designing a second chamber and assigning it a pivotal role in Pakistan.